What Bottom Ash Management Requirements Apply Under PERMENLHK 26/2020?

Executive Summary

PERMENLHK 26/2020 establishes comprehensive standards for handling bottom ash (abu dasar) and fly ash (abu terbang) produced from thermal waste processing facilities in Indonesia. Enacted on December 23, 2020, this regulation addresses potential health and environmental risks from thermal waste residues by mandating specific utilization pathways, processing standards, quality limits, and reporting obligations for facility operators. The regulation provides legal certainty for waste-to-energy operators while ensuring safe disposal or reuse of ash byproducts.

Regulatory Context

Full Title: Peraturan Menteri Lingkungan Hidup dan Kehutanan Republik Indonesia Nomor P.26/MENLHK/SETJEN/KUM.1/12/2020 tentang Penanganan Abu Dasar dan Abu Terbang Hasil Pengolahan Sampah Secara Termal

Issuing Authority: Menteri Lingkungan Hidup dan Kehutanan (Minister of Environment and Forestry)
Enacted: December 23, 2020
Promulgated: December 29, 2020
Official Gazette: Berita Negara Republik Indonesia Tahun 2020 Nomor 1638
Legal Basis: UU 18/2008 (Waste Management Law), PP 81/2012 (Household Waste Management)
Status: Active

Verbatim Key Definitions (Pasal 1)

Pasal 1: Dalam Peraturan Menteri ini yang dimaksud dengan:

1. Abu Dasar adalah abu yang jatuh yang dihasilkan dari Pengolahan Sampah Secara Termal.
2. Abu Terbang adalah abu yang melayang berbentuk partikel halus yang dihasilkan dari Pengolahan Sampah Secara Termal.
3. Pengolahan Sampah Secara Termal adalah proses pengolahan sampah yang melibatkan pembakaran bahan yang dapat terbakar yang terkandung dalam sampah dan/atau menghasilkan energi.
4. Lahan Urug Saniter adalah sarana pengurugan sampah ke lingkungan yang disiapkan dan dioperasikan secara sistematis, dengan penyebaran dan pemadatan sampah pada area pengurugan, serta penutupan sampah setiap hari.
5. Lahan Urug Terkendali adalah sarana pengurugan di areal pengurugan sampah, dengan cara dipadatkan dan ditutup dengan tanah penutup paling sedikit setiap tujuh hari, dan merupakan metode yang digunakan sebelum mampu menerapkan metode lahan urug saniter.
6. Izin Lingkungan adalah adalah izin yang diberikan kepada setiap orang yang melakukan usaha dan/atau kegiatan yang wajib amdal atau UKL-UPL dalam rangka perlindungan dan pengelolaan lingkungan hidup sebagai prasyarat untuk memperoleh izin usaha dan/atau kegiatan.
7. Menteri adalah menteri yang menyelenggarakan urusan pemerintahan di bidang perlindungan dan pengelolaan lingkungan hidup.

Core Regulatory Standards

1. Bottom Ash Handling Requirements (Pasal 2-5)

Pasal 2 mandates that operators of thermal waste processing facilities must handle both bottom ash and fly ash as residues from waste processing conducted according to prevailing laws.

Pasal 3 specifies two permitted pathways for bottom ash handling:
- a. Pemanfaatan (Utilization); and/or
- b. Pemrosesan akhir (Final processing)

Pasal 4 authorizes three utilization methods for bottom ash:
- a. Utilization as road base material (pemanfaatan sebagai bahan dasar jalan)
- b. Utilization as cement raw material (pemanfaatan sebagai bahan baku semen)
- c. Other utilization methods consistent with scientific and technological development

Pasal 5 defines final processing as the safe return of treated bottom ash to the environment, which must be conducted at:
- a. Sanitary landfill facilities (Lahan Urug Saniter)
- b. Controlled landfill facilities (Lahan Urug Terkendali)

2. Fly Ash Management Standards (Pasal 6-9)

Pasal 6 establishes two management pathways for fly ash:
- a. Advanced processing (pengolahan lanjutan)
- b. Final processing (pemrosesan akhir)

Pasal 7 specifies six approved advanced processing methods:
- a. Chelate
- b. Acid extraction
- c. Solidification (solidifikasi)
- d. Melting (peleburan)
- e. Sintering
- f. Other methods consistent with scientific and technological development

All advanced processing must be conducted at the thermal waste processing facility site.

Pasal 8 imposes mandatory quality standards:
- Operators must ensure fly ash meets specified quality limits
- Compliance must be verified through accredited laboratory testing
- Quality limits are specified in Lampiran I (Attachment I) of the regulation

Pasal 9 permits final processing only for fly ash that has met the quality standards established in Pasal 8.

3. Fly Ash Quality Limits (Lampiran I)

The regulation establishes maximum concentration limits for 12 heavy metals and pollutants in fly ash:

These limits apply to leachate testing results and must be verified by accredited laboratories.

4. Reporting and Oversight Requirements (Pasal 10-11)

Pasal 10 mandates comprehensive reporting:

Operators must prepare reports containing:
- a. Volume of waste processed through thermal processing
- b. Quantity of bottom ash and fly ash generated
- c. Type of handling method applied to both ash types
- d. Laboratory test results for fly ash quality

Reports must be:
- Submitted as part of Environmental Permit (Izin Lingkungan) reporting
- Filed with the Environmental Permit issuing authority at least once every 6 months
- Copied to the Minister if the permit was issued by a Governor or Regent/Mayor
- Formatted according to Lampiran II (Attachment II)

Pasal 11 establishes government oversight:

The Minister, Governors, and Regents/Mayors must conduct oversight of ash handling reports at least once every 6 months, according to their respective authorities.

Compliance Checklist

For Thermal Waste Processing Operators

Bottom Ash Management:
- [ ] Identify utilization pathway (road base, cement material, or alternative)
- [ ] If no utilization is feasible, arrange final processing at sanitary or controlled landfill
- [ ] Ensure all bottom ash is handled through authorized pathways

Fly Ash Management:
- [ ] Implement one of the six approved advanced processing methods on-site
- [ ] Conduct laboratory testing through accredited facilities
- [ ] Verify compliance with 12 quality parameter limits in Lampiran I
- [ ] Only proceed to final processing after quality standards are met

Reporting Obligations:
- [ ] Maintain records of waste volumes processed
- [ ] Track quantities of bottom ash and fly ash generated
- [ ] Document handling methods applied
- [ ] Compile laboratory test results
- [ ] Submit semi-annual reports to Environmental Permit authority
- [ ] Copy reports to Minister if permit issued by sub-national authority

For Regulatory Authorities

• [ ] Review semi-annual ash handling reports
• [ ] Conduct oversight inspections at least once every 6 months
• [ ] Verify laboratory accreditation status
• [ ] Ensure compliance with quality limits
• [ ] Forward reports to Minister as appropriate

Practical Implications

For Waste-to-Energy Developers: This regulation provides clear legal pathways for ash management, enabling thermal waste processing projects to proceed with certainty regarding residue disposal. Developers must budget for laboratory testing costs and establish relationships with accredited labs, as well as identify utilization partners (cement plants, road construction firms) or secure access to approved landfills.

For Cement and Construction Industries: The authorization to use bottom ash as cement raw material and road base creates potential secondary material supply streams. Industries should evaluate technical specifications and conduct feasibility studies to integrate ash utilization into production processes.

For Local Governments: Municipalities operating or permitting thermal waste facilities must establish semi-annual oversight schedules and ensure reporting compliance. Sub-national authorities issuing Environmental Permits must forward reports to the Ministry to enable national monitoring.

For Environmental Laboratories: Accredited laboratories gain a mandated testing market for fly ash quality verification. Labs must be capable of testing all 12 parameters specified in Lampiran I using internationally recognized methodologies.

Matrix Analysis: Ash Handling Pathways

Official Source

Full Text: Permen LHK No. 26 Tahun 2020 - BPK JDIH Database

Status: Active
Pages: 10
Attachments: Lampiran I (Fly Ash Quality Standards), Lampiran II (Reporting Format)

This article is part of CRPG's Environmental Protection series analyzing Indonesia's regulatory framework for waste management and pollution control.

Article 55 | REGPRIMA Protocol | Environmental Protection Series

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